Operation of the Homeless Persons Legislation in Scotland: 2012-13

6. Temporary accommodation

(parts of this section have been revised at 17:00 on 17 July 2013)

6.1. Statistics on numbers of households in temporary accommodation are taken from a quarterly statistical return by councils^[13]. The return provides summary information on households in temporary accommodation at the end of the quarter who have been placed there as a consequence of their homelessness application. Homeless applicants may be placed in temporary accommodation while the council assesses their application or while awaiting the offer of a permanent let. Also, non-priority applicants and those assessed as intentionally homeless may be placed in temporary accommodation and receive advice and assistance as the outcome of their application.

Latest position (revised at 17:00 on 17 July 2013)

At 31 March 2013:-

• There were 10,471 households in temporary accommodation – a decrease of 279 households (3% decrease) compared to one year earlier. 
• There were 2,936 households with children in temporary accommodation – a decrease of 551 households (16% decrease) compared with one year earlier. (Table 11 and Chart 27).

Chart 27: Scotland: Households in temporary accommodation at 31 March each year

Key trends (Paragraphs 6.2 to 6.4 have been revised to reflect changes in data on 17 July 2013.  Revision made 27 August 2013.) 

6.2. The total number of households in temporary accommodation has reduced in each of the last two years – 2012 and 2013 - and is now at just under 10,600 in 2013. Similarly, the number of households with children in temporary accommodation has also reduced during the last two years -  falling by 26% compared to its peak value at the end of March 2008.   The number of households with children in temporary accommodation was just under 3,000 at the end of March 2013.

6.3. The trends in numbers in temporary accommodation are likely to be due to a combination of the impacts of homelessness legislation and, more recently, the impacts of housing options. While it is not possible to precisely quantify separate effects the broad picture over the last ten years looks to be:-

• The increase in the overall number of households without children in temporary accommodation from 2002 was initially driven by homelessness legislation which placed new duties on councils to provide temporary accommodation, advice and assistance for non-priority homeless households. In 2002 the majority of priority homeless were households with children. Following this new duty there was a notable increase in the number of single people applying for homelessness assistance and hence the number in temporary accommodation.
• From 2002 the proportion of homeless applicants assessed as priority increased year on year. This was a direct consequence of homelessness legislation which, among other things, included a target that by 31 December 2012 all unintentionally homeless households would be assessed as being in priority need. Priority homeless households placed in temporary accommodation by councils generally spend significantly longer in temporary accommodation than non-priority homeless. This led to overall increases in numbers in temporary accommodation with the greatest increases for homeless households without children who are mainly single people.
• From 2010 the number of homeless applications has been falling mainly as a consequence of the development of homelessness prevention activities by councils through adopting a 'housing options' approach to meeting acute housing need. This change in practice looks to have contributed to the overall drop in numbers in temporary accommodation between 2011 and 2013.
   

6.4. During 2012/13, there have been further changes which may impact upon the number of households in temporary accommodation. These changes include:-

• The consequence of making the final step to 100% priority need in all local authority areas in the first quarter of 2013, following the commencement of the 2012 legislation from 1 January 2013.  However, any additional pressure on temporary accommodation may be offset to some extent by the continuing impact of homelessness prevention work.
• The availability of the supply of settled accommodation in the locations needed, particularly in the social rented sector, together with the size of available properties required. New restrictions now apply which will impose a housing benefit penalty^[14] on those households which live in a property which is too large for their needs. Homeless households which are single or childless couples will typically require a one bedroom property. However, demand for one-bedroom properties is likely to outstrip supply^[15].  The number of homeless households in temporary accommodation may increase if homeless households are unable to secure sufficient social sector lets due to competing pressures from others in housing need.
   

6.5. Chart 27a shows the percentage point increase in priority need, comparing January to March 2013 with the same quarter in the previous year. In terms of distance from meeting the 2012 homelessness commitment, Eilean Siar and East Lothian were furthest away. Glasgow City Council had almost met the target one year ago. For comparison, Chart 27b shows the percentage increase in households in temporary accommodation over the same period.

Chart 27a: Percentage Change in Priority Need

Chart 27b: Percentage Change in Temporary Accommodation

6.6. It is notable that there were significant increases in numbers in temporary accommodation in East Lothian and Edinburgh - councils with high proportions of social lets to homeless households and which delayed abolishing the priority need test until 31^st December 2012. However, the evidence is mixed. For example East Dunbartonshire which has a high percentage of lets to homeless and which also delayed abolishing the priority need test until 31^st December 2012 nevertheless saw a significant reduction in numbers in temporary accommodation over the past year. Overall, in the 17 local authorities which had not abolished priority need one year ago, seven have seen an increase in the number of households in temporary accommodation and eight have seen a decrease.

6.7. Chart 27c shows the percentage change in temporary accommodation, but this time for local authorities which had already met the 2012 commitment one year ago. Of these 15 authorities, six have seen an increase in the number of households in temporary accommodation. The largest percentage increases have been seen in Angus and Shetland.

Chart 27c: Percentage Change in Temporary Accommodation

Types of temporary accommodation used

6.8. The majority of households in temporary accommodation were in local authority or housing association accommodation (67%), with a further 12% in hostels and 11% in bed and breakfast. (Tables 11 and 12). Households with children or pregnant women are mainly provided with local authority or housing association accommodation (89%), with a small proportion (1%) being placed in bed and breakfast accommodation. (Table 12)

6.9. On 31 March 2013, there were 17 households with children or pregnant women in bed and breakfast accommodation. The number of households with children in bed & breakfast accommodation is now at just under 19% of the March 2008 level (an 81% fall). (Table 12).

6.10. Use of bed and breakfast accommodation for households with children varies by local authority. On 31 March 2013, 23 local authorities had no households with children in bed & breakfast accommodation, five councils had one household with children in bed and breakfast and four local authorities had 2 or more with children in bed & breakfast accommodation. Fife Council had six households with children in bed & breakfast accommodation. (Table 14)

Implementation of the Homeless Persons (Unsuitable Accommodation) (Scotland) Order

6.11. For each quarter from June 2005, councils have reported on the number of households at the end of the quarter who were in unsuitable temporary accommodation and the number where the accommodation provided to the household was in breach of the Unsuitable Accommodation Order. The snapshot figures show that in the quarter ending 31 March 2013:

• 17 households were in unsuitable accommodation. (Table 15a)
• Of these, four of the households were in unsuitable accommodation in breach of the Unsuitable Accommodation Order.  Single breaches were reported in Fife and Eilean Siar, Shetland and Midlothian.(Table 15b)

Households at risk of homelessness due to eviction:

Notifications under section 11 of the Homelessness etc (Scotland) Act 2003

6.12. During the quarter ending 31 March 2013, a total of 3,916 notifications^[16] of households at risk of homelessness due to eviction/repossession were received by local authorities under section 11 of the Homelessness etc. (Scotland) Act 2003. Of the 4,246 notifications, 2,977 (76%) were by creditors, 806 (21%) were by housing associations and 133 (3%) were by private landlords. (Chart 28 and Table 16)

Chart 28: Scotland: Section 11 notifications

Compared to January to March 2012:

• Notifications from creditors have decreased by 1,095 (-27%) from around 4,000 in Jan – March 2012 to just under 3,000 in the same period in 2013. The number homeless because of mortgage default, at under 500 is much lower than the number of notifications.  The increase in notifications by creditors between October to November 2012 and January to March 2013 is consistent with the recent increase in number homeless because of mortgage default.
• Notifications from housing associations have fallen by 404 (33%).
• Notifications from private landlords have fallen by 5 (4%).
   

6.13. Due to a number of concerns with the quality of data surrounding section 11 notifications, the homelessness statistics user group has decided that no further information on section 11 notices will be collected.